公正转型议题国际治理的挑战与前景

Challenges and Prospects of International Governance on the Issue of Just Transition

沙姆沙伊赫世界气候大会(COP27)授权确立了“公正转型路径工作方案议题”,随后在波恩附属机构会议(SB58)和迪拜世界气候大会(COP28)上,各方开展多轮磋商,通过迪拜会议决定文件,初步明确了公正转型议题的工作目标、范围和形式。本文系统跟踪公正转型问题在《联合国气候变化框架公约》下的谈判历程,基于各方立场研究公正转型议题谈判进展,分析该议题的主要分歧、主要挑战以及谈判前景。各方在公正转型议题上的分歧主要体现在:公正转型是国际议程还是国内事务,公正转型议题的覆盖领域和功能,是否建立配套资金机制,单边贸易措施对公正转型的影响等。公正转型议题面临的挑战包括:对“公正转型”概念和边界的界定,对议题目标、任务的各自解读和解释,优先工作领域的识别,配套工作支持机制的建立,缺乏资金保障等。尽管公正转型议题面临诸多挑战,但仍具有良好的国际合作前景。各方在碳中和目标约束下具有积极的行动意愿,已具备一定的国际合作基础。推进公正转型工作,不仅有助于实现减排目标,对全球可持续发展和生态文明建设也具有协同意义。

The Sharm El Sheikh Climate Conference(COP27)authorized the establishment of the“Work Programme on Just Transition Pathways”,followed by multiple rounds of consultations at the Bonn Subsidiary Body Meeting(SB58)and the Dubai Climate Conference(COP28).Through the decision document of the Dubai Conference,the work objectives,scope,and format of the Just Transition issue were preliminarily clarified.The paper systematically tracks the negotiation process of the Just Transition issue under the United Nations Framework Convention on Climate Change(UNFCCC).It studies the progress based on the positions of the parties involved and analyzes the main disagreements,challenges,and prospects in the negotiations.The key disputes among stakeholders revolve around whether Just Transition is an international agenda or a domestic matter,the scope and functions of the issue,the establishment of supporting financial mechanisms,and the impact of unilateral trade measures on Just Transition.The challenges include defining the concept and boundaries of“Just Transition,”interpreting the goals and tasks of the agenda,identifying priority areas of work,establishing supporting mechanisms,and securing financial backing.Despite these challenges,there are promising prospects for international cooperation on Just Transition.Under the constraint of carbon neutrality goals,parties are demonstrating a willingness to act,and there is a foundation for international cooperation.Advancing Just Transition efforts not only supports emission reduction goals but also contributes to global sustainable development and the construction of ecological civilization.